PROGRESS IN THE PREVENTION AND
CONTROL OF AIR POLLUTION
IN 1972
ANNUAL REPORT
Of The
ADMINISTRATOR 01' THE ENVIRONMENTAL
PROTECTION AGENCY
To The
CONGRESS OF THE UNITED STATES
In Compliance With
Public Law 91-604
The Clean Air Amendments of 1970
May 1973
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PROGRESS IN THF. PREVENTION AND
CONTROL OF AIR POLLUTION
IN 1972
ANNUAL REPORT
Of The
ADMINISTRATOR OF THE ENVIRONMENTAL
PROTECTION AGENCY
To The
CONGRESS OF THE UNITED STATES
In Compliance With
Public Law 91-604
The Clean Air Amendments of 1970
May 1973
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TABLE OF CONTENTS
Page
I. SUMMARY l
11. STANDARDS, REGULATIONS, AND GUIDELINES 5
III. NDNITORING 9
IV. ENFORCEMENT AND CONTROL 13
V. STATUS OF AIR POLLUTION ABATEMENT PROGRAMS 28
VI ACTIVITIES OF THE PRESIDENT'S AIR QUALITY
BOARD
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LIST OF TABLES
T. STATUS OP EPA AIR REGULATORY EFFORT
Fl. MONITORING INSTRUMENTS OPERATED BY STATES
III. SUMMARY OF GRANTS FOR STATES AND LOCAL
CONTROL AGENCY PROGRAMS
IV. MANPOWER EMPLOYED BY STATE AND LOCAL AIR
POLLUTION CONTROL AGENCIES
V. STATUS OF EPA ACTIONS ON STATE
IMPLEMENTATION PLANS
VI. STATES GRANTED EXTENSIONS FOR ACHIEVEMENT
OF S02 AND PARTICULATE AMBIENT AIR QUALITY
STANDARDS
VII. AIR QUALITY CONTROL REGIONS REQUIRING
TRANSPORTATION/LAND USE CONTROLS AND TWO-
YEAR EXTENSIONS TO ATTAIN STANDARDS
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PREFACE
The Clean Air Act, as amended, authorizes a national
program of air pollution research, regulation, and enforcement
activities. This program is conducted by the Environmental
Protection Agency (EPA).
This report describes the major elements of progress
made by EPA during calendar year 1972 toward the prevention
and control of air pollution. It is submitted annually in
accordance with Section 313 of the Clean Air Act, which reads
as follows:
"Sec. 313. Not later than six months after the effective date
of this section and not later than January 10 of each calendar
year beginning after such date, the Administrator shall report
to the Congress on measures taken toward implementing the pur-
pose and intent of this Act including, but not limited to,
(1) the progress and problems associated with control of auto-
motive exhaust emissions and the research efforts related
thereto; (2) the development of air quality criteria and
recommended emission control requirements; (3) the status of
enforcement actions taken pursuant to this Act; (4) the status
of State ambient air standards setting, including such plans
for implementation and enforcement as have been developed;
(5) the extent of development and expansion of air pollution
monitoring systems; (6) progress and problems related to
development of new and improved control techniques; (7) the
development of quantitative and qualitative instrumentation
to monitor emissions and air quality; (8) standards set or
under consideration pursuant to title II of this Act; C9) the
status of State, interstate, and local pollution control pro-
grams established pursuant to and assisted by this Act; and
(10) the reports and recommendations made by the President's
Air Quality Advisory Board."
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I. SUMMARY
This report is organized into five major areas:
. Standards, Regulations, and Guidelines
. Monitoring
. Enforcement and •• Control
. Status of Air Pollution Abatement Programs
. Activities of the President's Air Quality
Advisory Board
Summarized below under the above headings are EPA's
principal accomplishments during the 1972 calendar year.
Standards. Regulations, and Guidelines
Regulations were promulgated in the mobile source area
in 1972 which established emission limits for 1974 model year
heavy duty trucks. Regulations were also promulgated which
assured the availability of unleaded fuel for automotive
use in mid-1974. A number of regulations were proposed
which are also applicable to mobile sources:
(1) Emission limits for 1975 model year light duty
diesel motor vehicles
(2) Maintenance provisions for post-1974 light duty
vehicles
(3) Emission limits for aircraft and aircraft engines
(4) Schedule for the removal of lead from leaded grades
of gasolines
«
In other areas, 12PA issued guidance to the States on
necessary revisions in their implementation plans. These
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revisions address such topics as the requirement for public
hearings on comp]Lance schedules. Transportation Control
Guidelines will lie proposed soon to assist the States in pre-
paring transportation control plans. In the case of the
California South Coast Basin, EPA has been ordered by a
Federal court, to submit a transportation control plan which
will achieve the national ambient air quality standard for
photochemical oxidants.
Monitoring
A detailed analysis of the monitoring program was con-
ducted this year. As a result the EPA monitoring effort is
being decentralized with as much responsibility as possible
delegated to the States and regions.
Because of problems with the present reference method for
measuring nitrogen dioxide (NC>2) , a major effort is underway
to evaluate a replacement method and to reassess ambient NC^
levels in air quality control regions.
The monitoring program has also initiated a quality
control effort. As a result of this effort, it will be possi-
ble to compare and utilize data from different laboratories
through the use of uniform procedures.
Enforcement and Control
Several significant mobile source enforcement actions
were taken in 1972. Among the most important were the denial
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of the automobile manufacturers' request for suspension of
1975 emission standards (see footnote, p. 14), and the disqual-
ification of the entire Ford Motor Company prototype certifi-
cation fleet because of unauthorized maintenance during dura-
bility testing (subsequently, Ford was fined $7 million for
violations of Federal law). A program was implemented to
enforce emission standards for imported vehicles. Also, EPA
ordered that devices designed to defeat the effectiveness of
emissions controls be removed from new cars. The first
stationary source enforcement actions under the Clean Air Act
were taken in 1972: 30-day notices for violation of a state
implementation plan were issued to Delmarva Power and Light
Company (March 8, 1972) and Allied Chemical (May 26, 1972).
Toward the control of mobile source pollution, an EPA
task force was formed in 1972 to assess the capability of the
auto industry to meet the 1975 and 1976 light duty vehicle
emission standards. In addition, surveillance testing was
initiated on a total of 3,000 1972 model year vehicles in St.
Louis, Los Angeles, Atlanta, Detroit and Philadelphia. This
testing was designed to determine how emission control
systems will perform in actual use. The EPA program supporting
the development of advanced automotive power systems was
broadened in 1972 to consider noise and fuel economy factors,
impacts of electric vehicles, and an assessment of private
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industry progress and development.
Status of Air Pollution Abatement Programs
In 1972 State Implementation Plans were submitted for
every State and region. The review and approval or disapproval
ol" these plans vms a major effort. In addition, Transportation
Control Plans were required from 24 states. The deadline for
submission of these plans is April 15, 1973.
Activities of President's Air Quality Advisory Board
The Air Quality Advisory Board met once during 1972 to
discuss the relationship between land use and environmental
quality.
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II. STANDARDS, REGULATIONS AND GUIDELINES
Air pollution control standards set by EPA are con-
sidered below under three groupings on the basis of their
primary concern:
(1) Regulations affecting mobile sources
(2) Regulations affecting stationary sources
(3) Guidance to the states and regions.
Mobile Source Regulations
Two major mobile source regulations were promulgated
during 1972. The first established emission limits for new
1974 heavy duty motor vehicles. The second was intended to
assure the availability of sufficient quantities of unleaded
gasoline for 1975 model year vehicles.
Several regulations were proposed in 1972, including
maintenance provisions for post-1974 light duty vehicles,
emission limits for 1975 light duty diesel motor vehicles,
and a schedule for the removal of lead from leaded grades of
gasoline. In addition, 1974, 1976, and 1979 emission limits
for aircraft and aircraft engines were proposed.
Regulations were proposed on February 23, 1972 requiring
• The general availability by July 1, 1974 of a grade
of unleaded gasoline containing not more than 0.05
grams of lead and not more than 0.005 grams of
phosphorus per gallon
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• A reduction of lead in leaded grades to not more than
1.25 grams per gallon by January 1, 1977.
At that time, a 90-day comment period was opened, and
public hearings were held in April and May.
The health effects information received during the comment
period did not resolve the health effects issues. As a result,
the comment period was reopened for an additional 30 days on
May 14, 1972. The unleaded grade regulations will be promul-
gated early in 1973. However, because of the need for more
data on the health effects issues,, the regulations for a reduction
of lead in leaded grades of gasoline will be reproposed at the
same time.
Stationary Source Regulations
New source performance standards (NSPS) are emission
standards for new and significantly modified point sources.
One group of standards for five industrial source categories
was promulgated in December 1971. Revisions to these standards
which clarified the applicability of standards during start up
and shut down procedures were proposed in 1972. A second group
of sources is under consideration and standards will be pro-
posed in 1973. Group I and the sources considered for Group
II are listed below:
Group I; Fossil Fuel Fired Steam Generators
Municipal Incinerators
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Cement Plants
Nitric Acid Plants
Sulfuric Acid Plants
Group II: Petroleum Refineries
Secondary Lead Smelters
Iron and Steel Mills (basic oxygen furnaces)
Sewage Treatment Plants
Asphalt Concrete Plants
Brass and Bronze Ingot Production Plants
Storage Vessels for Petroleum Liquids
Hazardous poJlutants arc also essentially a stationary
source problem. Asbestos, beryllium, and mercury have been
identified as hazardous pollutants and regulations were pro-
posed in December 1971 to limit emissions from sources of
these pollutants. Promulgation of the regulations is expected
early in 1973.
Guidance to States and Regions
F.PA has issued or is developing guidelines for the States
and 1-PA regional offices. Revisions to the guidelines for
State Implementation Plans were promulgated in 1972, including
a list of steps essential to ensure conformance with compliance
schedules. Guidelines will soon be proposed to aid those States
required to submit Transportation Control Plans to meet national
ambient air quality standards for carbon monoxide and/or photo-
chemical oxidants.
All regulatory actions are summarized in Table I.
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TABLE I. STATUS OF EPA AIR REGULATORY EFFORT
MOBILE SOURCES
Heavy Duty Motor Vehicles
Light Duty Diesel Motor
Vehicles
Light Duty Vehicle
Maintenance
Aircraft Emission Standards
Non- leaded Gasoline
Reduction of Lead in
Leaded Gasoline
STATIONARY SOURCES
New Source Performance
Standards (NSPS) General
Group II New Source
Performance Standards
Hazardous Pollutants
GUIDANCE
Revisions to State
Implementation Plan Guidelines
Transportation Control
Guidelines
Establishes emission limits for new 1974 and later
model heavy duty motor vehicles
Proposes emission limits for new 1975 light duty diesel
motor vehicles
Proposes maintenance provisions for post-1974 light duty
motor vehicles
Proposes 1974, 1976, and 1979 emission limits for
aircraft and aircraft engines
Assures availability of sufficient quantities of
unleaded fuel in mid-1974
Proposes a schedule for removal of lead from leaded
grades of gasoline
Proposes start up and shut down regulations
Proposes emission limits for new sources--see text
Establishes emission or other limits on sources of
asbestos, mercury and beryllium
Outlines requirements for changes necessary in SIP's
--see text
Outlines necessary procedures and information for
fornulation of state transportation control plans
Promulgated 9/8/72
Proposed
Proposed
Proposed
10/6/72
11/8/72
12/12/72
Promulgated 1/10/73
Re-proposed 1/10/73
Proposed
Proposal
Pending
Promulgation
Pending
8/24/72
Early 1973
Early 1973
Pronulgated 12/9/72
Proposed
1/12/73
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HI. MONITORING
F,PA is responsible for conducting an ambient, and source
monitoring program to:
• Determine the need for developing ambient air quality
and source emission standards and regulations
• Locate localized "trouble spots"
• Measure air quality and emission trends to assure
maintenance of standards
The states have responsibility for ami) Lent air monitoring
with technical and financial assistance from liPA. The number
and type of monitoring sites required, currently in operation,
and planned by the States is presented in Table II.
I'.PA has given assistance to States and territories in
developing inventories of 60,000 point and 3,.sOO area sources.
The current inventory data are stored in a computerized data
b a n k .
Decentralization of Monitoring Effort
A detailed analysis of the monitoring program was con-
ducted tliis year and some changes resulted. The basic deci-
sion was to decentralize the monitoring effort and to dele-
gate as much responsibility as possible to the States and
regions. As part of this effort, a pilot program was estab-
lished in Region II to investigate the possibility of having
regional offices conduct analysis of samples. Currently, all
samples collected in the regions are sent to F.PA-Research
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Triangle Park, North Carolina for analysis. Kstablishment of
facilities in regional offices would speed analysis, as well
as increase the total number of samples which could be
collected.
Development of New Monitoring Techniques
Reference methods for air pollution measurement are being
reviewed.
In particular, problems have arisen recently with the current
reference method for measurement of nitrogen dioxide. Evalua-
tions are proceeding at 100 sites with a threefold purpose
• To determine a replacement for the current reference
method
• To reclassify the air quality control regions with
respect to nitrogen dioxide
• To furnish data for state implementation plans
Three nitrogen dioxide measurement methods appear promising;
however, the evaluation will continue until mid-1974.
A method for ambient monitoring of asbestos, which is
classified as a hazardous pollutant, was developed recently
by HPA.
Quality Control
The monitoring program has also been involved in quality
control improvements.. This effort is an attempt to assure
accuracy and validity of monitoring data nationwide. Through
10
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the use of uniform procedures in all phases of the monitoring
process, it is possible to compare and utilize data gathered
by different laboratories. This activity is expected to be
fully implemented in 1973.
11
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TABLE II. NDNITORING INSTRUMENTS OPERATED BY STATES
Pollutant
Measured
TSP-Hi Vol **
TSP-Tape
S02- Bubbler
SO? -Continuous
N02- Continuous
CO-Continuous
Ox-Continuoas
Minimum
requirement
1587
522
855
268
NR
150
227
Current
2767
500
640
350
123
198
207
Planned By
State in 1974*
3650
850
1400
950
275
400
400
* Based on State Implementation Plans Submitted to EPA.
** TSP=total suspended particulate
NR - None Required
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IV. ENFORCEMENT AND CONTROL
Mobile Source Enforcement
Several significant mobile source enforcement actions
were taken in 1972. Among the most important were a refusal
to certify vehicles on which unauthorized maintenance was
performed, denial of a request for suspension of the 1975
auto emissions standards (see footnote, p. 14), and develop-
ment and implementation of a program to enforce emission
standards for imported vehicles. Additionally, the commercial
airlines' program to retrofit the JT8D engine was about 92%
completed by the end of 1972. The program must be completed
in 1973 under the newly proposed aircraft emission standards.
Ford Certification Failure <
EPA refused emissions compliance certification of the
entire Ford Motor Company prototype fleet when it was discovered
that unauthorized maintenance had been performed during dura-
bility testing on one engine family manufactured. Consequently,
the engines of this family that had been manufactured could
not be sold until conformity with the certification process
was demonstrated through a full rerun of the 50,000 mile
durability test. The rerun was satisfactorily completed in
1972. Subsequently, Ford was fined $7 million dollars for
criminal and civil violations of Federal law.
13
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Auto Suspension Request
On May 12, 1972 the Administrator announced his decision
to deny the request of five automobile manufacturers to sus-
pend the 1975 standards for one year. The manufacturers main-
tained that more time was needed to develop catalytic reactors
as well as other system components. Catalyst suppliers,
however, indicated that their components would be ready for
installation in 1975 models. Denial was based primarily on
the failure of the manufacturers to demonstrate that requisite
technology did not presently exist.—
Import Program
Until March 1971, used automobiles imported from abroad,
and new automobiles imported by individuals for personal use,
were not required to meet emissions standards. In the past
year, F.PA has developed an import program which controls all
imports. Progress in the past year has included:
. Publication of import regulations in February 1972.
. Issuance of a standard declaration form.
.Establishment of working relations with Customs
Officials at all ports.
. Development of computer capability to store and evaluate
import dnta.
All imported vehicles must now meet upon entry, or be
motlified to meet rifter entry, all applicable standards for
the model year involved.
T7Since this writing, the decision was revised by court order
~~ and changed after a new hearing.
14
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Defeat Devices
Defeat devices are devices which automatically and
temporarily disable at least a part of the emission control
system under commonly encountered conditions of urban driving.
This results in an increase in air pollutant emissions. On
December 15, 1972 EPA ordered that these devices be eliminated
from 1973 model year vehicles manufactured by Ford, Chrysler,
American Motors, Nissan, and Toyota. Approximately 2 million
cars and trucks yet to be produced were affected. Public
hearings will be held on this issue early in 1973.
Development of Mobile Source Control
In 1972 EPA continued its involvement in several programs
designed to foster technological improvements for the control
of automotive air pollution. Among the most important are pro-
grams for development of an assembly line and inspection test
of auto emissions (Short Test), and development of advanced
automotive power systems. In addition, EPA is encouraging
private industry to develop engine systems meeting 1976
emission standards through the Federal Clean Car Incentive
Program and the Low Emission Vehicle Purchase Program.
Development of "Short Test"
In the past year EPA has been evaluating several short
test methods. The purpose is to qualify a test for use on
high volume auto assembly lines. A short test is also sought for
State-run inspection and maintenance programs, but the test need
15
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not be the same as for the assembly .line test. At present,
none of the tests correlate sufficiently with the full
Federal test procedure used in vehicle certification.
Two»basic problems exist in development of the short test.
First, correlation is complicated because the short test is a
hot engine test while the certification procedure is cold
start. Second, it must be determined whether the measurement
of emissions from a new engine can be related meaningfully to
emissions of an in-use vehicle.
Advanced Automotive Power Systems
The Advanced Automotive Power Systems (AAPS) Program goals
and objectives have been broadened in the past year to include
more than the testing and evaluation of advanced power systems.
The broadened program will include:
1. Collection and evaluation of information on private
industry progress and development.
2. Consideration of noise and fuel economy factors in
addition to emission factors.
3. Consideration of the impacts of electric-powered
vehicles as opposed to gasoline-powered vehicles.*
In 1972 three power systems were under AAPS consideration:
the gas turbine, the Rankine cycle and the stratified charge.
* To reflect the broadened goals and objectives the program
has been renamed the Alternative Automotive Power Systems
16
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These three systems are considered to present the most
favorable prospects at this time for further development.
Hardware demonstrations, in cooperation with the Army, arc
scheduled for 1975. A contract has been signed with Chrysler
Corporation to supply engines and vehicles to test the gas
turbine system.
Federal Clean Car Incentive Program
The Federal Clean Car Incentive Program is designed to
encourage private development of low emission vehicles to meet
1976 emission standards. Seven systems have been accepted into
the program. One prototype vehicle, an internal combustion
engine with catalytic exhaust treatment and exhaust gas recir-
culation, has been delivered for testing. The remaining six
entrants are in the pre-prototype delivery phase.
Low Emission Vehicle Purchase Program
Under the Low Emission Vehicle Purchase Program, the Low
F.mission Vehicle Certification Board will certify low emission
vehicles for purchase by the Federal government for fleet use.
An application for battery-powered heavy duty trucks was
received in October 1972 and is presently being processed.
Several other manufacturers have indicated intent to file appli-
cations .
Monitoring Industry Progress and Capability
An EPA task force was formed during fiscal year 1972 to
assess progress and capabilities of the automotive industry in
17
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meeting the 1975-76 light duty vehicle emissions standards.
Several approaches are being taken:
, Industry has been requested to, and has cooperated in
supplying information on methods under development.
. The National Academy of Sciences was contracted to
conduct a comprehensive study of the technological
feasibility of meeting 1975-76 standards.
. The Aerospace Corporation has two contracts with EPA
to provide data on the state-of-the-art of automobile
emission control and to provide engineering support for
continuing assessment of industry's capability for meeting
1975-76 emission standards.
Field Testing of 1972 Vehicles
On September 12, 1972, it was announced that EPA would
begin field testing 1972 model cars and light duty trucks. A
total of 3,000 car owners in Los Angeles, Atlanta, Detroit,
Philadelphia, and St. Louis were selected at random from state
registration lists to form the test sample. The test sample
selected represents more than 701 of all 1972 models sold in
the United States. Testing procedures will be the same as those
required for new car certification. These in-use tests are
designed to determine how emission control systems will perform
during actual use and will be used to determine if recall pur-
suant to Section 207(c) is necessary and appropriate.
18
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Stationary Source Enforcement
P,PA took its first stationary source enforcement actions
under the Clean Air Act in 1972. The first 30-day notice for
violation of a state implementation plan was issued to Delmarva
Power and Light Company (Delaware City Plant) on March 8 for
failure to reduce the sulfur content of its fuel by January 1,
1972.
EPA also issued a notice to Allied Chemical on May 26 for
violation of sulfur dioxide levels set forth in the Delaware
State Implementation Plan at its Claymont Delaware plant. On
July 20, the Administrator ordered Allied Chemical to comply
with state requirements. Requirements for compliance have
been established by the EPA Regional Administrator for Region
III, which includes Delaware.
Development of Stationary Source Control
SOV Control Technology Development
Many of the techniques for removal of sulfur oxides (SOX)
from flue gas have now reached the demonstration stage of
development. Demonstrations are being carried out on a scale
large enough so that application to a full size plant can be
evaluated. Techniques now being demonstrated include:
. Dry limestone injection--150 megawatt coal-fired boiler
at TVA's Shawnee Power Plant, Paducah, Kentucky.
. Wet limestone scrubbing--TVA Shawnee Power Plant, a
secondary demonstration of a process variation at Key
West, Florida.
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, Catalytic Oxidation (Monsanto-Cat-Ox)- - Illinois Power-
100 megawatt coal fired boiler at Wood River Station.
. Magnesium oxide scrubbing (Chemical Construction Company)
--Boston Edison 150 megawatt oil fired boiler at Mystic
River Station.
. Sodium ion scrubbing with thermal regeneration (Wellman
Power-Gas) Northern Indiana Public Service Company--100
megawatt coal fired boiler at Gary, Indiana.
Over the past year, studies of the impact of various S02
sources on ambient air quality in most major cities that exceed
Federal Ambient Air Quality Standards have revealed that a
major contributor to adverse air quality is the combustion of
fossil fuels in industrial and commercial boilers. In most of
these industrial cities this source accounts for over 50% of
the ambient SOX. This is not to say that electric utilities
are not still a major problem. Under adverse weather conditions
the utility, because of its great mass of emissions, can be the
major source of pollution. The SOX Control Technology Develop-
ment Program has been broadened to address the control of the
non-utility sources to achieve (1) product emission control
capabilities for industrial and area combustion sources which
have a primary effect on ambient air quality, (2) improved,
second generation control capabilities for both large and small
combustion sources, and (3) control for specific industrial
processes which are major emission contributors in specific
localities.
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The development and demonstration of ongoing clean fuels
projects will be accelerated. These projects include the
mechanical and chemical desulfurization of coal, molten iron
combustion which traps the sulfur from coal in the slag
together with coal ash, and the fluidized gasification/desul-
furization of residual oil. A second thrust will be the
intensified development and adaptation of flue gas cleaning
technology to the industrial source sector.
Particulate Control Technology Development
Current particulate control technology is adequate to
achieve up to 991 control of particulates as measured on a
mass basis. It is totally inadequate, however, for the
control of fine particulates less than 3 microns. Fine
particulates may be partially) controlled with present devices
by increasing their size, power input or pressure drop.
However, the cost of control is about inversely proportional
to particle size.
Unfortunately, it is this size fraction that remains air-
borne once suspended, is breathed deeply into the lungs,
becomes a vehicle for toxic gases, and is a prime contributor
to atmospheric turbidity. Further, since many of the
combustion-originated fine particulates are products of con-
densation of metallic substances, this size fraction frequently
21
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contains a much higher percentage of active trace materials
such as lead, copper, vanadium, etc. likely to be chemically
active, catalytic and possible health hazards.
The 1-PA participate control technology program is in an
carJy stage of development. Emphasis is being placed in two
areas: (1) development of new technology for control of
fine particles and (2) upgrading and extending the applica-
tion of conventional technology for more effective control of
coarse and fine particles.
j. Control Technology Development
The control of NOX from new motor vehicles will be primarily
dependent on Federal standards while the control of existing
stationary sources of NOX will be dependent on State standards,
set as n result of implementation plan development.
Stationary sources are not built, modified or replaced
at a rate comparable to motor vehicles. Thus, the control
of stationary sources becomes a matter primarily of modifying
existing sources. The impending reclassif icat ion of the AQCR's
for NOX may ease the control requirements on some existing
22
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stationary sources, hut where NOX emissions limitations on
stationary sources will still he required, existing technol-
ogy may be inadequate. Therefore, research and development
must be carried out to insure the achievement of ambient air
quality standards. Given the nature of the sources, and the
time period of compliance, Federal involvement in the R§D
program is necessary. Increased awareness of the magnitude
of the N0x.air pollution problem coupled with the urgency
of developing control techniques for stationary sources have
guided the accelerated 17Y 1973 Rf,D effort.
Two alternatives for control are (1) the prevention of
N()x formation and (2) the removal of NOX formed before pro-
ducts of combustion are released to the atmosphere. The EPA
Rf,D program places major emphasis on alternative (1) through
control of the combustion process. This alternative is
emphasized because of its greater near-term control capabil-
ity and its lower commercial cost.
Other Pollutant Control Technology
For over five years, stationary source^R§D programs of
EPA (and its predecessor) have concentrated on the.need
to develop SO? (from power plants) control technology.
Attention is now being shifted to controls for many other
pollutants, some of which are potentially more objectionable
than SO->. These include hydrocarbons, hazardous pollutants,
ha 1 ides, carbon monoxide, and odors, to name a few.
27,
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EPA has begun to set standards in several areas involv-
ing these pollutants. There is a pressing need for informa-
tion, techniques and control technology to allow both the
setting of meaningful and comprehensive standards and provide
means for affected industries to respond to control require-
ments. The research approach includes (1) characterization
and quantification of the hazardous pollutant control capa-
bility of on going or planned control system projects for
combustion and industrial processes, (2) extension and
acceleration of studies on specific industries and pollutants
in order to quantify the pollutants emitted and the degree
of control currently available, (3) R and Dto develop effec-
tive controls for known offensive sources and declared and
potentially hazardous pollutants. This will include commer-
cial scale demonstration of control technology developed
under the particulate control technology development program.
Air Pollution Control Program Grants
Air pollution control program grants are awarded to State,
local, regional and interstate agencies with legal responsibility
for air pollution control. These grants are conferred for assist
ing, planning, developing, establishing, and monitoring air
pollution control programs. Grants awarded in fiscal year
1971 and 1972, and estimated grants for fiscal year 1973 are
summarized in Table III.
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TABLE III. SUMMARY OF GRANTS FOR STATE AND LOCAL CONTROL
AGENCY PROGRAMS
State or Territory
Alabama ...
Alaska
Arizona ...
Arkansas ..
California
Colorado
Connecticut
Delaware
District of Columbia
Florida'
Georgia ,
Hawaii .,
Idaho ..,
Illinois
Indiana ,
Iowa
Kansas ...
Kentucky ,
Louisiana
Maine
Maryland
Massachusetts
Michigan
Minnesota
Mississippi .
Missouri
Montana
Nebraska
Nevada
New Hampshire
New Jersey
New Mexico
New York
North Carolina
North Dakota ..
Ohio
Oklahoma
Oregon
Pennsylvania
Rhode Island
$
1972
Actual
527,324
69,775
207,049
208,527
3,690,260
900,784
1,335,796
189
225,000
885,741
630,218
96,445
81,687
2,423,520
826,034
559,243
335,761
159,028
175,000
987,000
794,385
1,613,520
365,669
421,724
717,574
231,460
231,929
245,702
185,409
2,118,844
706,440
3,967,790
1,489,069
45,000
1,798,153
484,906
486,828
2,080,700
133,899
1973
Estimated3-
$ 709,427
152,518
512,614
280,295
3,893,615
576,524
1,014,406
260,054
173,088
1,363,097
684,100
157,395
141,074
2,830,000
1,109,927
498,841
470,228
1,016,034
349,959
245,349
852,115
1,247,799
2,010,073
700,097
477,699
1,123,344
237,022
304,422
248,532
227,609
2,583,130
302,543
4,232,424
1,050,998
62,207
2,450,000
481,408
667,492
3,645,052
197,117
1974
Estimated
$
861,100
142,090
563,400
407,000
3,769,990
501,200
839,400
212,200
214,600
1,186,600
1,085,400
101,200
271,200
2,640,000
1,738,480
687,600
562,320
766,660
807,200
315,000
850,800
1,375,400
1,853,600
873,600
590,430
956,670
222,800
274,960
248,200
238,500
1,734,000
328,800
3,755,800
1,154,400
89,600
2,644,390
471,600
532,300
3,259,890
269,000
25
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TABLE III. (can't)
South Carolina
South Dakota ..
Tennessee .....
Texas
Utah
Vermont
Virginia
Washington ...
West Virginia
Wisconsin
Wyoming
American Samoa
Guam
Puerto Rico ...
Virgin Islands
111,783
32,025
703,614
2,603,299
224,426
1,062,000
1,129,910
317,620
965,448
68,133
54,744
464,417
100,043
708,247
86,943
1,157,469
2,789,526
216,945
173,669
618,516
1,194,024
322,693
900,000
102,667
33,210
54,990
512,261
89,212
719,600
137,870
910,800
2,398,800
319,600
98,800
1,007,400
1,003,050
500,700
1,039,200
59,900
13,800
51,470
489,800
71,200
Grant $ contract support for
Implementation Plan revision
and development
State Assignee0
Approximate Total
$40,281,000
...b
1,808,000
$42,089,000
$48,500,000 $48,219,000
3,017,000
1,645,000
3,000,000
281,000
$53,162,000 $51,500,000
a Dollar amounts are estimates of the actual amounts that may be
awarded states during FY 73. Estimates include funds to support
the program that provides Federal employees to the States on a
temporary basis.
b No budgeting in 1972 for SIP development.
c Funds for temporary Federal empoyees assigned to states other
than by payment through the grant mechanism.
26
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The increase in strength at the State and local control
agency level can be used as an indicator of the Nation's
growing capability to control air pollution. Table IV shows
that the number of people employed in state and local agencies
increased by 85% approximately in the last four years.
TABLE IV. MANPOWER EMPLOYED3 BY STATE AND LOCAL
AIR POLLUTION CONTROL AGENCIES
Estimates6
Agency
State
Local
Total
1969b
997
1840
2837
1971C
1537
2628
4165
1972d
2028
3295
5323
1973
2834
3000
5834
1975
4949
3660
8609
a Full-time budgeted positions.
b Manpower report to Congress June 1970.
c Preliminary report of a State and local air pollution control
agency manpower and training survey.
d Estimated from Control Agency Summary Reports (Grants).
e Estimated from state implementation plan summary.
27
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V. STATUS OF AIR POLLUTION ABATEMENT PROGRAMS
Under Section 110 of the Clean Air Act, as amended in 1970,
States were required to submit plans to EPA that would imple-
ment the national ambient air quality standards promulgated
by EPA on April 30, 1971. On August 14, 1971 EPA promulgated
guidelines for preparation and submission of the State Imple-
mentation Plans (SIP's). By May 30, 1972 EPA was required
by the Act to approve or disapprove the SIP's, or portions
thereof. By July 30, 1972 EPA was required to promulgate
any portions of SIP's not yet approved.
On May 31, 1972, EPA published in the Federal Register
the formal approval and/or disapproval of the SIP's. Of the
55 SIP's (50 States plus American Samoa, Puerto Rico, Guam,
the Virgin Islands, and the District of Columbia), only 14
were totally approved: Alabama, American Samoa, Colorado,
Connecticut, Florida, Guam, Mississippi, New Hampshire, North
Carolina, North Dakota, Oregon, Puerto Rico, South Dakota
and West Virginia. The 41 remaining SIP's were disapproved
in part because of the absence of, or deficiency in, one or
more essential regulatory portions. In these cases, the EPA
was required to propose and promulgate substitute regulations.
On June 14, July 27, and September 22, 1972, the EPA
proposed regulations to correct the regulatory deficiencies
of the SIP's. As of November 15, 1972, thirteen ' States
(Alaska* Arkansas, Delaware, Georgia, 'Kentucky, Maine, Maryland,
Massachusetts, Ohio, South Carolina, Tennessee, Texas
28
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and Washington) had corrected these deficiencies, thereby
negating the need for the EPA to promulgate regulations for
those States. Thus, as of December 31, 1972, there were
24 States for which EPA promulgation was not necessary.
After holding public hearings and reviewing comments,
EPA promulgated regulations for seven States (Hawaii, Indiana,
Iowa, KaHsas; ' "ttiode Island, Vermont and* Wyoming) on"
September 22, 1972, and for seven additonal States (California,
Louisiana,'Minnesota,.Missouri, New Jersey, Utah rand the Virgin Islands)
on October 28, 1972. Action on the remaining 14 States for
which EPA promulgation is required is expected to be com-
pleted, after hearings and review of public comments, by
mid-1973. If any of these States correct the regulatory
deficiencies.of their SIP's, EPA promulgation will be obviated.
Also, EPA promulgation would be revoked for the aforementioned
14 States if the necessary regulations were adopted by the
States. Table V summarizes the status of the SIP's.
Eighteen month extensions for the development of a plan
to meet secondary standards for particulate matter and/or
sulfur oxides have been granted in 27 air quality control
regions. These plans are to be submitted on July 31, 1973.
Also, transportation cdntrol strategies to attain
carbon monoxide and/or photochemical'oxidant standards must
be submitted for 38 regions by April'15, 1973. Table VI
deals with extensions which have been granted for the
29
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achievement of ambient air quality standards. The status of
transportation control plans listed in Table VII may change
due to matters now in litigation and other factors.
30
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TABLE V. STATUS OF EPA ACTIONS ON STATE IMPLEMENTATION PLANS
Regulatory
Portions of
Plan Approved
3A Regulations
Proposed
State
THE
Totally
Approved
EPA Regs.
Promulgated
Region I
Connecticut 5/31/72
Maine 10/28/72
Massachusetts
New Hampshire 5/31/72
Rhode Island
Vermont
Region II
New Jersey
New York
Puerto Rico 5/31/72
Virgin Islands
Region III
Delaware 9/22/72
District of Columbia
Maryland
Pennsylvania
Virginia
West Virginia 5/31/72
Region IV
Alabama 5/31/72
Florida 5/31/72
Georgia 9/22/72
Mississippi 5/31/72
Kentucky
North Carolina 5/31/72
South Carolina
Tennessee
Region V
Illinois
Indiana
Minnesota
Michigan
Ohio 7/27/72
Wisconsin
Region VI
Arkansas
Louisiana
New Mexico
Oklahoma
Texas
10/28/72*
9/22/72
9/22/72
10/28/72*
10/28/72*
9/22/72
10/28/72*
9/22/72
7/27/72
7/27/72
7/27/72
10/28/72*
10/28/72*
9/22/72
10/28/72
7/27/72
7/27/72
9/22/72
10/28/72'
10/28/72*
7/27/72
6/14/72
31
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TABLE V. (can't)
Region VII
Iowa
Kansas
Missouri
Nebraska
Region VIII
Colorado
Montana
North Dakota
South Dakota
Utah
Wyoming
Region IX
Arizona
California
Hawaii
Nevada
Guam
American Sajioa
Region X
Washington
Oregon
Idaho
Alaska
9/22/72
9/22/72
10/28/72*
5/31/72
5/31/72
5/31/72
10/28/72*
9/22/72
10/28/72*
9/22/72
5/31/72
5/31/72
10/28/72*
5/31/72
7/27/72
7/27/72
7/27/72
7/27/72
9/22/72
7/27/72
10/28/72*
7/27/72
7/27/72
* Action on promulgation of nitrogen oxides emission limitations not
taken as yet.
32
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TABLE VI. STATES GRANTED EXTENSIONS FOR ACHIEVEMENT OF S02
AND PARTICULATE AMBIENT AIR QUALITY STANDARDS
Two Year Extension
Primary Standard
State
ALASKA
ARIZONA
CALIFORNIA
COLORADO
HAWAII
IDAHO
KENTUCKY
MARYLAND
MASSACHUSETTS
MONTANA
NEW .JERSEY
NEW MEXICO
NEW YORK
NEVADA
OHIO
PENNSYLVANIA
UTAH
VIRGINIA
S02
Participate
18 Month Extension-
Secondary Standard
SO-
X
X
X
X
X
X
X
X
X
X
X
Participate
X
X
X
X
X
X
X
X
X
X
33
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TABLE VII. AIR QUALITY CONTROL REGIONS REQUIRING TRANSPORTATION/
LAND USE CONTROLS TO ATTAIN STANDARDS
Transportation/Land
State (EPA Region) Use Controls Required
AQCR For;
Alaska (X) CO
Northern Alaska-Fairbanks
Alabama (IV)
Metropolitan Birmingham CO,
Alabama (IV)
Mobile City C^
Arizona (IX)
Phoenix-Tucson CO,
California (IX)
San Francisco Bay Area CO,
California (IX)
Metropolitan Los Angeles CO,
California (IX)
San Diego CO,
California (IX)
Sacramento Valley CO, 0^
California (IX)
Fresno CO, 0
California (IX)
El Centro CO
Colorado (VIII)
Metropolitan Denver CO, 0^
District of Columbia (III) CO, GX
Indiana (V)
Metropolitan Indianapolis CO, 0^
Illinois (V)
Metropolitan Chicago CO
Kansas (VI)
Metropolitan Kansas City CO
34
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TABLE VII. (con't)
Louisiana (VI)
Southern Louisiana
Maiyland (HI)
Metropolitan Baltimore CO,
Maryland (III)
National Capital Region CO,
Massachusetts (I)
Metropolitan Boston CO,
Massachusetts (I)
Springfield CO
Missouri (VI)
Metropolitan Kansas City-
Interstate CO
Minnesota (V)
Minneapolis-St. Paul CO
Nevada (IX)
Las Vegas CO,
New Jersey (II)
Urban Section
bordering N.Y. CO,
New Jersey (II)
Metropolitan
Philadelphia-Interstate CO
New York (II)
New York City CO,
New York (II)
Rochester 0^
New York (II)
Syracuse CO
Ohio (V)
Metropolitan Cincinnati
Ohio (V)
Metropolitan Dayton
35
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TABLE VII. (con't)
Ohio (V)
Metropolitan Toledo 0^
Oregon (X)
Portland-Interstate CO,
Pennsylvania (III)
Metropolitan
Philadelphia CO
Pennsylvania (III)
Pittsburgh CO,
Texas (VII)
Austin-Waco Ox
Texas (VII)
Beaumont Ox
Texas (VII)
Corpus-Christi-Victoria GX
Texas (VII)
Metropolitan
Houston-Calveston GX
Texas (VII)
Metropolitan
Dallas-Ft. Worth QX
Texas (VII)
Metropolitan San Antonio C^
Texas (VII)
El Paso-Las Cruces
Alamogordo-Interstate QX
Utah (VIII)
Salt Lake City CO
Virginia (III)
National Capital Region CO,
Washington (X)
Eastern Washington
Spokane CO
Washington (X)
Seattle CO,
36
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Special Problems
There are several major impediments to the promulgation
of State Implementation Plans and achievement of air quality
standards. One such problem is the confusion caused by the
discovery of inaccuracy in the NOX measurement technique.
This problem is not expected to be fully resolved until 1974
(see Chapter III, Development of New Monitoring Techniques).
Another such consideration is the Sierra Club suit against
the EPA on the issue of non-degradation of air quality. By
alleging that the Administrator violated the intent of
Congress in his method of approving State Implementation Plans,
the Sierra Club brings to issue policies on growth and develop
ment which may cause deterioration in air quality. The suit
is currently awaiting review by the Supreme Court. If the
Court decides for the Sierra Club, significant changes will
be required in portions of State Implementation Plans dealing
with new sources .
Another pressing problem is the deficit of low sulfur
coal. Because many States included conversion of coal-
burning facilities to low sulfur coal as a major control
measure for sulfur oxides, this shortage has implications
for the achievement of air quality goals. In November 1972 the
Administrator sent a letter to the governors of those States
and regions which had major low sulfur coal deficits. That
letter advised that EPA would consider variances or plan
revisions which would delay compliance where necessary and
where attainment of the primary standard was not jeopardized.
37
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The States receiving the letter were: Alabama, Georgia,
Illinois, Indiana, Kentucky, Michigan, Missouri, North
Carolina, Ohio, Pennsylvania, Tennessee and West Virginia.
VI. ACTIVITIES OF THE PRESIDENT'S AIR QUALITY
ADVISORY BOARD
The President's Air Quality Advisory Board held a five
day conference with the President's Water Pollution Control
Advisory Board in March of 1972. The subject of the confer-
ence was: "The Relationship between Environmental Quality
and Land Use." Following testimony by noted experts in the
field, the Board developed recommendations based on the
findings of the conference.
The recommendations centered on the need for private
and public reorientation of land policies and attitudes, in
order to bring land use and environmental goals into
harmony.
38
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